About special modules.

I’m curious but why are these special things faction specific? It doesn’t feel as flexible with all ships of that class seem to have the same ability within every tech level of that faction. I mean I know they upgrade in damage and have some little effect depending on what sub faction vessel you choose but… Wont people prefer a single faction more so than another because of this? Would it not make more sense if these special modules were role specific? I mean there are a total of 9 special modules, 3 for each ship class, 3 ship classes, and 3 roles per class totaling out as 9 roles. So why isn’t it like that?